Source · Select Committees · Public Accounts Committee
Twelfth Report - Cross-government working
Public Accounts Committee
HC 75
Published 13 February 2024
Recommendations
5
Accepted
Publish departments' Outcome Delivery Plans and progress against cross-cutting outcomes to improve transparency.
Recommendation
Government does not consistently report on cross-cutting outcomes. The Cabinet Office and HM Treasury are responsible for supporting and monitoring the delivery of departmental objectives and 20 cross-cutting outcomes set-out in Outcome Delivery Plans (ODPs). Departments published their first ODPs …
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Government Response Summary
The government states that details of cross-cutting priority outcomes were already published at Spending Review 2021, including in a supplementary document with performance metrics. Departments are also expected to publish performance against their Outcome Delivery Plans in their annual reports and accounts.
HM Treasury
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18
Accepted
Joint bids at Spending Reviews remain underused, requiring more support and promotion.
Recommendation
HM Treasury told us that joint bids at Spending Reviews was another way it had tried to encourage departments to pool resources and work together to generate benefits. It told us that at Spending Review 2021 it had identified departments …
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Government Response Summary
The government accepts the recommendation, setting an August 2024 target. HM Treasury will produce guidance for the next Spending Review setting expectations for departments to work together on cross-cutting areas, building on previous efforts to improve the joint bid process and provide support.
HM Treasury
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19
Accepted
Most government major projects lack robust evaluation plans, limiting evidence of effectiveness.
Recommendation
In 2021, the Government set up a joint Evaluation Task Force to support evaluation of policies and programmes across government.36 The Head of the Evaluation Task Force told us that only 8% of all government major projects and plans have …
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Government Response Summary
The government accepts the recommendation, stating it has already implemented measures like updating Consolidated Budgeting Guidance in 2022 and enforcing Green Book requirements. It also commits to publishing updated guidance on the Treasury Approvals Process in April 2024, while the Evaluation Task Force will continue to support departmental analysts.
HM Treasury
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20
Acknowledged
The evaluation registry will mandate and publicly share government evaluation plans and reports.
Recommendation
The Head of the Evaluation Task Force told us it is working to encourage departments to share learning.40 She also told us about the ‘evaluation registry’ which holds information on what evaluation government has already done in the sector and …
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Government Response Summary
The government states the Evaluation Task Force will continue to provide consultation, share findings, and support departmental analysts with evaluation data, clarifying that departments are ultimately responsible for their own evaluations. It does not explicitly confirm the mandatory rollout or public viewing date for the evaluation registry mentioned by the committee.
HM Treasury
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21
Accepted
Departments inconsistently apply Green Book guidance on evaluation plans in spending proposals.
Recommendation
HM Treasury’s Green Book guidance on business case appraisal makes clear that plans for monitoring and evaluation should be proportionately included in each spending proposal that is submitted.44 Departments approaches vary in how much they choose to take these plans …
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Government Response Summary
The government accepts the recommendation, stating it has already implemented steps such as updating Consolidated Budgeting Guidance in 2022 and working with departments on outcomes. HM Treasury is also updating guidance on the Treasury Approvals Process, due in April 2024, to set expectations for cross-government working.
HM Treasury
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22
Accepted
Departments lack clarity and consistent reporting on cross-cutting policy delivery in ODPs.
Recommendation
It is not always clear which departments are involved in delivering policies which cut across departmental boundaries. Departments report on their priority outcomes in Outcome Delivery Plans (ODPs). Departments published their first ODPs in July 2021.47 In October 2023, as …
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Government Response Summary
The government states it has already implemented the recommendation by publishing details of cross-cutting priority outcomes and contributing departments at Spending Review 2021, with departments expected to publish performance in their ODPs and annual reports. HM Treasury will continue to monitor and analyse cross-government working.
HM Treasury
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Conclusions (17)
2
Conclusion
Accepted
Many cross-government projects that come before this Committee are hindered by missing or inadequate data. The government has historically had an issue with poor quality and inconsistent data and with ineffective data sharing arrangements. Whilst there have been some positive improvements, such as establishing data standards across government, difficulty with …
Government Response Summary
The government states that the Evaluation Task Force already supports departments by upskilling staff through its Evaluation Academy and providing guidance on data. The ONS Integrated Data Service also enables data sharing, and the Analysis Function continues to support departments' analytical expertise.
3
Conclusion
Acknowledged
Effective cross-government working is fundamental to delivering government’s priorities but there is a lot of work to do to make it more than just a ‘nice to have’. Efforts have been made to incentivise cross-government working through reward and recognition but HM Treasury acknowledges there is a lot of work …
Government Response Summary
The government states it will determine its approach to supporting cross-departmental working at the next Spending Review, informed by lessons learned from previous SRs and the Shared Outcomes Fund, and is committed to providing guidance to remove barriers to collaboration.
4
Conclusion
Accepted
HM Treasury has taken initial steps to evaluate what works but now needs to fully embed this to improve cross-government working. In 2021, the Government set up a joint Evaluation Task Force to support evaluation of policies and programmes across government. HM Treasury made greater use of its powers, requiring …
Government Response Summary
The government states it has already updated Consolidated Budgeting Guidance and uses Green Book requirements. HM Treasury is also updating guidance on the Treasury Approvals Process to set out expectations for cross-government working for projects, due to be published in April 2024.
1
Conclusion
Accepted
On the basis of a report by the Comptroller and Auditor General, we took evidence from Sir Alex Chisholm, Permanent Secretary at the Cabinet Office, and from Cat Little, Second Permanent Secretary at HM Treasury, about cross-government working.1 We also took evidence from four practitioners to understand more about the …
Government Response Summary
The government states it already provides support for cross-government working, including a 'Joint Working Support Project', a hub on the Policy Profession website, improved joint spending bid processes at SR21, and learning packages through Government Campus and the Leadership College for Government.
6
Conclusion
Accepted
Both our reports and those undertaken by the National Audit Office (NAO) regularly demonstrate the importance of a shared vision and objectives, coordinated programme and risk management, and compatible data and technology to ensure successful cross- government working.8
Government Response Summary
The government agrees with the observation and targets March 2025 for ongoing work, having published six joint delivery models in May 2023 to facilitate joined-up policy development and delivery, and will continue to monitor and analyse their use.
7
Conclusion
Accepted
In May 2023, HM Treasury set out six joint delivery models for cross-government working in Managing Public Money, including details on responsibilities and accountabilities for each model. At one end of the spectrum covered by these models, joint delivery can involve simple collaboration, where departments may collaborate in the development …
Government Response Summary
The government confirms it published the six joint delivery models in May 2023 and states the guidance supports departments in identifying collaboration levels and understanding changing responsibilities.
8
Conclusion
Accepted
It is important to understand how these models are being used across government and identify which model of joint working is most appropriate in different circumstances. HM Treasury explained that it had not yet analysed what proportion of cross-government working was undertaken through each of the different models but said …
Government Response Summary
The government agrees and targets March 2025 for implementation, having published six joint delivery models in May 2023, and commits to continuing to monitor and analyse how these models are being used across government, with updates on progress by March 2025.
9
Conclusion
Departmental witnesses told us how effective cross-government working begins with a shared vision.11 Cabinet Office told us that a vision does not always arrive ready- made and it is important for the departments involved to understand and appreciate the ‘common goal’.12 We also heard that getting buy-in from departments is …
10
Conclusion
Accepted
As well as a shared vision, clear outcomes need to be established and shared between departments to measure success.15 Clearly defined responsibilities and accountability structures are also important.16 Cabinet Office told us that alongside encouraging cross- government working by explaining the financial benefits to those involved, it is also important …
Government Response Summary
The government agrees with the observation and targets March 2025 for ongoing work, stating that in May 2023 it published new guidance on six joint delivery models to help departments identify appropriate collaboration levels and understand changing responsibilities, and HM Treasury will continue to monitor and analyse their use.
11
Conclusion
Accepted
HM Treasury and Cabinet Office have identified a range of barriers to effective cross-government working. The most commonly identified barriers included: structures 7 Q 44; C&AG’s Report para 5 8 Q 1; C&AG’s Report para 6 9 C&AG’s Report para 1.4, Figure 2 10 Q 49; C&AG’s Report para 1.4 …
Government Response Summary
The government states it has provided hands-on support through a 'Joint Working Support Project' to help teams examine barriers and identify appropriate cross-government working models, and HM Treasury is committed to further removing barriers and improving cross-cutting business cases through guidance and support.
12
Conclusion
Accepted
Departmental witnesses told us that the extent of these problems can depend on the policy area, but highlighted that sharing lessons across government can be difficult because there is not a single place to find information.19 Cabinet Office told us that it tries to disseminate good practice through the work …
Government Response Summary
The government agrees and targets March 2025 for implementation, highlighting its existing Policy Profession website hub, Government Campus, and Leadership College for Government for sharing best practice. HM Treasury will also write to the Committee with updated findings from the Shared Outcomes Fund towards the end of its funding period.
13
Conclusion
Accepted
Many of the projects and programmes brought before the Committee suffer from a lack of good quality data or are adversely affected by government IT systems not ‘talking’ to each other.22 Issues with data was identified as the main barrier to cross-government working in HM Treasury’s and the Cabinet Office’s …
Government Response Summary
The government agrees with the committee's observation and states the 'recommendation implemented,' outlining ongoing efforts by the Evaluation Task Force, the Magenta Book, and the ONS Integrated Data Service to support departments with data identification, collection, and analysis for evaluation, as well as analytical capability.
14
Conclusion
Accepted
We have reported time and time again on the impact of poor IT, and are aware of the extreme complexity and inconsistency of data systems across government, for example within the criminal justice system.24 The Cabinet Office told us that across government there are around 205 core systems that run …
Government Response Summary
The government agrees with the committee's observation and states the 'recommendation implemented,' outlining ongoing efforts by the Evaluation Task Force, the Magenta Book, and the ONS Integrated Data Service to support departments with data identification, collection, and analysis for evaluation, as well as analytical capability.
15
Conclusion
Accepted
The Cabinet Office told us that one of the bigger challenges across government is extracting the value out of the data to drive insights and decisions in a timely way.27 Without good data it is difficult to evaluate effectively what works.28 In addition, insufficient data capacity and capability across government …
Government Response Summary
The government agrees with the committee's observation and states the 'recommendation implemented,' outlining ongoing efforts by the Evaluation Task Force, the Magenta Book, and the ONS Integrated Data Service to support departments with data identification, collection, and analysis for evaluation, as well as analytical capability.
16
Conclusion
Accepted
Additional funding is an incentive used to encourage cross-government working, with the Shared Outcomes Fund being the most recent initiative.30 It was set up in 2019 by HM Treasury to fund pilot projects that test innovative ways of working across the public sector, with an emphasis on thorough plans for …
Government Response Summary
The government accepts the (implicit) recommendation, committing that HM Treasury will write to the Committee by March 2025, the end of the Shared Outcomes Fund's funding period, with updated findings from the project.
17
Conclusion
Accepted
However, there is little incentive for departments to invest in programmes that deliver benefits elsewhere in government.33 We challenged HM Treasury on whether Permanent Secretaries received sufficient recognition for delivering outcomes across multiple departments. HM Treasury acknowledged the importance of rewarding and recognising those who invest time in cross-government delivery …
Government Response Summary
The government agrees to address the lack of incentives for cross-government investment and will produce new Spending Review guidance by August 2024, setting expectations for departments to work together on cross-cutting areas. It also highlights past improvements in joint bid applications and updated budgeting guidance.
23
Conclusion
Rejected
In 2022, the Government said that it was focusing on producing ODPs for 2023–24 rather than the plans for 2022–23 which it would cover retrospectively in the 2022–23 Annual Reports and Accounts. For 2023–24 departments will not be required to publish their ODPs.49 We challenged HM Treasury and the Cabinet …
Government Response Summary
The government reiterates the ministerial decision that departments will only produce internal Outcome Delivery Plans for 2023-24, effectively rejecting the implied need for public transparency, but commits to writing to the committee with an update by the end of May.